ADMIN LAW GENERAL POWERS AND ATTRIBUTES OF LGUS: LEGISLATIVE POWER

Title: Samahan ng mga Progresibong Kabataan v. Quezon G.R. No. 225442

City Date: August 8, 2017
Ponente: Perlas-Bernabe, J.
SAMAHAN NG MGA PROGRESIBONG KABATAAN (SPARK), *
QUEZON CITY, as represented by MAYOR HERBERT
JOANNE ROSE SACE LIM, JOHN ARVIN NAVARRO
BAUTISTA, CITY OF MANILA, as represented by MAYOR
BUENAAGUA, RONEL BACCUTAN, MARK LEO DELOS REYES,
JOSEPH ESTRADA, and NAVOTAS CITY, as represented by
and CLARISSA JOYCE VILLEGAS, minor, for herself and as
MAYOR JOHN REY TIANGCO,
represented by her father, JULIAN VILLEGAS, JR.,
respondents
petitioners
FACTS
 Following the campaign of President Rodrigo Roa Duterte to implement a nationwide curfew for minors, Navotas City,
City of Manila, and Quezon City started to strictly implement their curfew ordinances on minors through police
operations which were publicly known as part of "Oplan Rody."
 Samahan ng mga Progresibong Kabataan (SPARK), an association of young adults and minors that aims to forward a
free and just society, in particular the protection of the rights and welfare of the youth and minors argues that the
Curfew Ordinances are unconstitutional because they:
(a) Result in arbitrary and discriminatory enforcement, and thus, fall under the void for vagueness doctrine, as there
are no clear provisions or detailed standards on how law enforcers should apprehend and properly determine the
age of the alleged curfew violators;
(b) Suffer from overbreadth by proscribing or impairing legitimate activities of minors during curfew hours despite
the exemption of working students or students with evening class since that the lists of exemptions do not cover
the range and breadth of legitimate activities or reasons as to why minors would be out at night, and, hence,
proscribe or impair the legitimate activities of minors during curfew hours;
(c) Deprive minors of the right to liberty and the right to travel without substantive due process; and
(d) Deprive parents of their natural and primary right in rearing the youth without substantive due process.
 Petitioners likewise proffer that the Curfew Ordinances fail to pass the strict scrutiny test, for not being narrowly
tailored and for employing means that bear no reasonable relation to their purpose arguing that the prohibition of
minors on streets during curfew hours will not per se protect and promote the social and moral welfare of children of
the community.
 Furthermore, petitioners claim that the Manila Ordinance’s imposition of penalties contravenes Sec. 57-A of RA 9344's
express command that no penalty shall be imposed on minors for curfew violations.
 Lastly, petitioners submit that there is no compelling State interest to impose curfews contrary to the parents'
prerogative to impose them in the exercise of their natural and primary right in the rearing of the youth, and that even
if a compelling interest exists, less restrictive means are available to achieve the same such as massive street lighting
programs, installation of CCTVs in public streets, and regular visible patrols by law enforcers. They further opine that
the government can impose more reasonable sanctions, i.e., mandatory parental counseling and education seminars
informing the parents of the reasons behind the curfew, and that imprisonment is too harsh a penalty for parents who
allowed their children to be out during curfew hours.
ISSUE/S
Whether or not the Curfew Ordinances are unconstitutional. PARTLY
RATIO
 Void for Vagueness.
o A statute or act suffers from the defect of vagueness when it lacks comprehensible standards that men of common
intelligence must necessarily guess at its meaning and differ as to its application. It is repugnant to the Constitution
in two (2) respects: (1) it violates due process for failure to accord persons, especially the parties targeted by it,
fair notice of the conduct to avoid; and (2) it leaves law enforcers unbridled discretion in carrying out its provisions
and becomes an arbitrary flexing of the Government muscle.
o Petitioners' invocation of the void for vagueness doctrine is improper, considering that they do not properly
identify any provision in any of the Curfew Ordinances, which, because of its vague terminology, fails to provide
fair warning and notice to the public of what is prohibited or required so that one may act accordingly. The void
for vagueness doctrine is premised on due process considerations, which are absent from this particular claim.
o The vagueness doctrine is a specie of "unconstitutional uncertainty," which may involve "procedural due process
uncertainty cases" and "substantive due process uncertainty cases." "Procedural due process uncertainty"
 involves cases where the statutory language was so obscure that it failed to give adequate warning to those
subject to its prohibitions as well as to provide proper standards for adjudication.
o Besides, petitioners are mistaken in claiming that there are no sufficient standards to identify suspected curfew
violators. While it is true that the Curfew Ordinances do not explicitly state these parameters, law enforcement
agents are still bound to follow the prescribed measures found in statutory law when implementing ordinances
as provided by Sec. 7 of RA 9344, as amended. This provision should be read in conjunction with the Curfew
Ordinances because RA 10630 (the law that amended RA 9344) repeals all ordinances inconsistent with statutory
law.
o Pursuant to Sec. 57-A of RA 9344, as amended by RA 10630, minors caught in violation of curfew ordinances are
children at risk and, therefore, covered by its provisions. It is a long-standing principle that "conformity with law
is one of the essential requisites for the validity of a municipal ordinance."
o Applying the foregoing, any person, who was perceived to be a minor violating the curfew, may therefore prove
that he is beyond the application of the Curfew Ordinances by simply presenting any competent proof of
identification establishing their majority age. In the absence of such proof, the law authorizes enforcement
authorities to conduct a visual assessment of the suspect, which — needless to state — should be done ethically
and judiciously under the circumstances. Should law enforcers disregard these rules, the remedy is to pursue the
appropriate action against the erring enforcing authority, and not to have the ordinances invalidated.
 Right of Parents to Rear their Children
o Sec. 12, Article II of the 1987 Constitution articulates the State's policy relative to the rights of parents in the
rearing of their children. As may be gleaned from this provision, the rearing of children for civic efficiency and the
development of their moral character are characterized not only as parental rights, but also as parental duties.
This means that parents are not only given the privilege of exercising their authority over their children; they are
equally obliged to exercise this authority conscientiously.
o While parents have the primary role in child-rearing, it should be stressed that "when actions concerning the child
have a relation to the public welfare or the well-being of the child, the State may act to promote these legitimate
interests." Thus, "in cases in which harm to the physical or mental health of the child or to public safety, peace,
order, or welfare is demonstrated, these legitimate state interests may override the parents' qualified right to
control the upbringing of their children."
o As our Constitution itself provides, the State is mandated to support parents in the exercise of these rights and
duties. State authority is therefore, not exclusive of, but rather, complementary to parental supervision.
o The Curfew Ordinances are but examples of legal restrictions designed to aid parents in their role of promoting
their children's well-being. Minors, because of their peculiar vulnerability and lack of experience, are not only
more exposed to potential physical harm by criminal elements that operate during the night; their moral well-
being is likewise imperiled as minor children are prone to making detrimental decisions during this time.
o It should be emphasized that the Curfew Ordinances apply only when the minors are not — whether actually or
constructively — accompanied by their parents. This serves as an explicit recognition of the State's deference to
the primary nature of parental authority and the importance of parents' role in child-rearing. Parents are
effectively given unfettered authority over their children's conduct during curfew hours when they are able to
supervise them. Thus, in all actuality, the only aspect of parenting that the Curfew Ordinances affects is the
parents' prerogative to allow minors to remain in public places without parental accompaniment during the
curfew hours. In this respect, the ordinances neither dictate an over-all plan of discipline for the parents to apply
to their minors nor force parents to abdicate their authority to influence or control their minors' activities.
 Right to Travel
o The Court rejects petitioners' invocation of the overbreadth doctrine, considering that petitioners have not
claimed any transgression of their rights to free speech or any inhibition of speech-related conduct. The
application of the overbreadth doctrine is limited to a facial kind of challenge and, owing to the given rationale of
a facial challenge, applicable only to free speech cases.
o The right to travel is recognized and guaranteed as a fundamental right under Sec. 6, Article III of the 1987
Constitution. Jurisprudence provides that this right refers to the right to move freely from the Philippines to other
countries or within the Philippines. Liberty — a birthright of every person — includes the power of locomotion
and the right of citizens to be free to use their faculties in lawful ways and to live and work where they desire or
where they can best pursue the ends of life.
o Nevertheless, grave and overriding considerations of public interest justify restrictions even if made against
fundamental rights. Specifically on the freedom to move from one place to another, jurisprudence provides that
this right is not absolute. As the 1987 Constitution itself reads, the State may impose limitations on the exercise
 of this right, provided that they: (1) serve the interest of national security, public safety, or public health; and (2)
are provided by law.
o The stated purposes of the Curfew Ordinances, specifically the promotion of juvenile safety and prevention of
juvenile crime, inarguably serve the interest of public safety. As to the second requirement, that the limitation
"be provided by law," our legal system is replete with laws emphasizing the State's duty to afford special
protection to children.
o Particularly relevant to this case is Article 139 of PD 603, which explicitly authorizes local government units,
through their city or municipal councils, to set curfew hours for children. City councils are authorized to enact
curfew ordinances and enforce the same through their local officials. In other words, PD 603 provides sufficient
statutory basis — as required by the Constitution — to restrict the minors' exercise of the right to travel.
o The restrictions set by the Curfew Ordinances that apply solely to minors are likewise constitutionally permissible.
In this relation, this Court recognizes that minors do possess and enjoy constitutional rights, but the exercise of
these rights is not co-extensive as those of adults. They are always subject to the authority or custody of another,
such as their parent/s and/or guardian/s, and the State. As parens patriae, the State regulates and, to a certain
extent, restricts the minors' exercise of their rights.
o Bellotti v. Baird: US Supreme Court identified three (3) justifications for the differential treatment of the minors'
constitutional rights. These are: first, the peculiar vulnerability of children; second, their inability to make critical
decisions in an informed and mature manner; and third, the importance of the parental role in child rearing.
o Philippine jurisprudence has developed three (3) tests of judicial scrutiny to determine the reasonableness of
classifications. The strict scrutiny test applies when a classification either (i) interferes with the exercise of
fundamental rights, including the basic liberties guaranteed under the Constitution, or (ii) burdens suspect classes.
The intermediate scrutiny test applies when a classification does not involve suspect classes or fundamental rights,
but requires heightened scrutiny, such as in classifications based on gender and legitimacy. Lastly, the rational
basis test applies to all other subjects not covered by the first two tests.
o Considering that the right to travel is a fundamental right in our legal system guaranteed no less by our
Constitution, the strict scrutiny test is the applicable test. At this juncture, it should be emphasized that minors
enjoy the same constitutional rights as adults; the fact that the State has broader authority over minors than over
adults does not trigger the application of a lower level of scrutiny.
o The strict scrutiny test as applied to minors entails a consideration of the peculiar circumstances of minors vis-à-
vis the State's duty as parens patriae to protect and preserve their well-being with the compelling State interests
justifying the assailed government act. Under the strict scrutiny test, a legislative classification that interferes with
the exercise of a fundamental right or operates to the disadvantage of a suspect class is presumed
unconstitutional. Thus, the government has the burden of proving that the classification (i) is necessary to achieve
a compelling State interest, and (ii) is the least restrictive means to protect such interest or the means chosen is
narrowly tailored to accomplish the interest.
o This Court has ruled that children's welfare and the State's mandate to protect and care for them as parens patriae
constitute compelling interests to justify regulations by the State.
o While rights may be restricted, the restrictions must be minimal or only to the extent necessary to achieve the
purpose or to address the State's compelling interest. When it is possible for governmental regulations to be more
narrowly drawn to avoid conflicts with constitutional rights, then they must be so narrowly drawn. Thus, in the
present case, each of the ordinances must be narrowly tailored as to ensure minimal constraint not only on the
minors' right to travel but also on their other constitutional rights.
o After a thorough evaluation of the ordinances' respective provisions, this Court finds that only the Quezon City
Ordinance meets the above-discussed requirement, while the Manila and Navotas Ordinances do not.
o This Court observes that the Manila and Navotas Ordinances are not narrowly drawn in that their exceptions are
inadequate and therefore, run the risk of overly restricting the minors' fundamental freedoms. To be fair, both
ordinances protect the rights to education, to gainful employment, and to travel at night from school or work.
However, even with those safeguards, the Navotas Ordinance and, to a greater extent, the Manila Ordinance still
do not account for the reasonable exercise of the minors' rights of association, free exercise of religion, rights to
peaceably assemble, and of free expression, among others.
o Although it allows minors to engage in school or church activities, it hinders them from engaging in legitimate
non-school or non-church activities in the streets or going to and from such activities; thus, their freedom of
association is effectively curtailed. It bears stressing that participation in legitimate activities of organizations,
other than school or church, also contributes to the minors' social, emotional, and intellectual development.
 o Although the Navotas Ordinance does not impose the curfew during Christmas Eve and Christmas day, it
effectively prohibits minors from attending traditional religious activities (such as simbang gabi) at night without
accompanying adults.
o The Navotas Ordinance does not accommodate avenues for minors to engage in political rallies or attend city
council meetings to voice out their concerns in line with their right to peaceably assemble and to free expression.
o The Manila and Navotas Ordinances should be completely stricken down since their exceptions, which are
essentially determinative of the scope and breadth of the curfew regulations, are inadequate to ensure protection
of the above-mentioned fundamental rights. While some provisions may be valid, the same are merely ancillary
thereto; as such, they cannot subsist independently despite the presence of any separability clause.
o To note, there is no lack of supervision when a parent duly authorizes his/her minor child to run lawful errands or
engage in legitimate activities during the night, notwithstanding curfew hours. As astutely observed by Senior
Associate Justice Antonio T. Carpio and Associate Justice Marvic M.V.F. Leonen during the deliberations on this
case, parental permission is implicitly considered as an exception found in Sec. 4, item (a) of the Quezon City
Ordinance, i.e., "[t]hose accompanied by their parents or guardian," as accompaniment should be understood not
only in its actual but also in its constructive sense.
 Penal Provisions of the Manila Ordinance.
o Thus springs the question of whether local governments could validly impose on minors these sanctions — i.e.,
(a) community service; (b) reprimand and admonition; (c) fine; and (d) imprisonment. Pertinently, Secs. 57 and
57-A of RA 9344, as amended, prohibit the imposition of penalties on minors for status offenses such as curfew
violations.
o To clarify, these provisions do not prohibit the enactment of regulations that curtail the conduct of minors, when
the similar conduct of adults are not considered as an offense or penalized (i.e., status offenses). Instead, what
they prohibit is the imposition of penalties on minors for violations of these regulations.
o "Penalty" is defined as "punishment imposed on a wrongdoer usually in the form of imprisonment or fine."
Punishment, in turn, is defined as "a sanction — such as fine, penalty, confinement, or loss of property, right, or
privilege — assessed against a person who has violated the law."
o The provisions of RA 9344, as amended, should not be read to mean that all the actions of the minor in violation
of the regulations are without legal consequences. Sec. 57-A thereof empowers local governments to adopt
appropriate intervention programs, such as community-based programs recognized under Sec. 54.
o In this regard, requiring the minor to perform community service is a valid form of intervention program that a
local government could appropriately adopt in an ordinance to promote the welfare of minors.
o The sanction of admonition imposed by the City of Manila is likewise consistent with Secs. 57 and 57-A of RA 9344
as it is merely a formal way of giving warnings and expressing disapproval to the minor's misdemeanor.
Admonition is generally defined as a "gentle or friendly reproof" or "counsel or warning against fault or oversight."
o In other words, the disciplinary measures of community-based programs and admonition are clearly not penalties
— as they are not punitive in nature — and are generally less intrusive on the rights and conduct of the minor. To
be clear, their objectives are to formally inform and educate the minor, and for the latter to understand, what
actions must be avoided so as to aid him in his future conduct.
o A different conclusion, however, is reached with regard to reprimand and fines and/or imprisonment imposed by
the City of Manila on the minor. Reprimand is generally defined as "a severe or formal reproof." While the
Philippine Law Dictionary defines it as a "public and formal censure or severe reproof, administered to a person
in fault by his superior officer or body to which he belongs. It is more than just a warning or admonition." the
Revised Uniform Rules on Administrative Cases in the Civil Service and our jurisprudence explicitly indicate that
reprimand is a penalty, hence, prohibited by Sec. 57-A of RA 9344, as amended.
o Fines and/or imprisonment, on the other hand, undeniably constitute penalties — as provided in our various
criminal and administrative laws and jurisprudence — that Sec. 57-A of RA 9344, as amended, evidently prohibits.
RULING
WHEREFORE, the petition is PARTLY GRANTED. The Court hereby declares Ordinance No. 8046, issued by the local
government of the City of Manila, and Pambayang Ordinansa Blg. 99-02, as amended by Pambayang Ordinansa Blg.
2002-13 issued by the local government of Navotas City, UNCONSTITUTIONAL and, thus, NULL and VOID; while Ordinance
No. SP-2301, Series of 2014, issued by the local government of the Quezon City is declared CONSTITUTIONAL and, thus,
VALID in accordance with this Decision.
(SANTOS, 2B 2017-2018)